Debate over longer Sunday opening hours: Retail sector insists on legally secure regulations

In parallel, the federal government has announced that it will relax working time regulations for bakeries. In the future, bakeries and confectioneries should be allowed to open on Sundays for up to eight hours; until now, three hours have been permitted. The reform, which according to the federal government's plans is to take effect on 1 January 2027, explicitly concerns the working hours of employees, not the opening hours of the shops. No changes are planned for other retail sectors for the time being.

Bakeries: Eight hours instead of three

The current three-hour rule dates back to 1996. The Zentralverband des Deutschen Bäckerhandwerks (Central Association of the German Baking Trade) welcomes the reform and speaks of "genuine equality in competition". The current time span is no longer sufficient under today's market, competition, and production conditions. „Für den Verbraucher ändert sich an der Neuregelung nichts", the association stated. The headquarters of the central association is located in Berlin.

Spa regulation in Schleswig-Holstein

Retail in Schleswig-Holstein already benefits from the spa regulation (Bäderregelung). In 95 spa towns, shops may open on Sundays and public holidays for up to six hours. Only daily necessities may be sold. According to the state, this regulation applies for around eight months of the year. The current spa regulation has been considered a political consensus until now.

Frank Schischefsky, trade union spokesperson for ver.di in Northern Germany, however warns: „Die Bäderregelung in Schleswig-Holstein war bisher ein Konsens. Aber den kann man jetzt auch auflösen, wenn es hier Bestrebungen gibt, rund um die Uhr aufmachen zu wollen." Schischefsky fears that Sunday bonuses could disappear if Sunday becomes a regular working day. In addition, the shared day off on Sunday would be lost: „Wenn jeder am Sonntag arbeiten könne, verliere man das gemeinsame Frei am Sonntag."

Situation in North Rhine-Westphalia

The regulation is also complex in North Rhine-Westphalia. In NRW, bakeries, florists, pharmacies, kiosks, and petrol stations are allowed to open on Sundays, but bakeries only for up to five hours. In more than 100 cities and municipalities, additional Sunday openings are permitted, for example for the sale of typically regional goods such as souvenirs. Shops at train stations and airports are exempt from the restrictions. Furniture stores, car dealerships, hardware stores, and electronics specialty stores are excluded from Sunday sales.

The Nahrung-Genuss-Gaststätten (NGG) trade union clearly rejects the federal government's plans. „Eine Ausweitung der Arbeitszeit an Sonn- und Feiertagen wird unweigerlich dazu führen, dass das Arbeiten in dieser Branche noch unattraktiver wird", the NGG stated. „Es sei lebensfremd zu behaupten, dass Beschäftigte sonntags gerne arbeiteten und dann auch noch länger als drei Stunden. Das Gegenteil wäre der Fall.", it continued.

Voices from academia

The reform plans are receiving support from academia. Prof. Stefan Kooths, economic expert at the Kiel Institute for the World Economy (IfW), spoke out in favour of Sunday openings. „Es wäre ein Zeichen, dass der Staat dem Wirtschaftsablauf weniger regulatorische Steine in den Weg legt", he said. However, "keine spürbaren Wachstumseffekte" are to be expected. Gerrit Heinemann, retail expert at the Niederrhein University of Applied Sciences in Mönchengladbach, pointed out that longer opening hours do not automatically lead to higher revenues.

Further support is coming from business associations. Hubertus Bardt from the Institut der deutschen Wirtschaft (IW) told WDR: „Wenn wir den Einzelhandel stärken wollen, wenn wir die Innenstädte attraktiv machen wollen, dann brauchen wir auch ein Angebot, das entsprechend attraktiv ist." Dr. Peter Achten, Chief Executive of the Handelsverband NRW, emphasised: „Der Handel kann und sollte selbst entscheiden, wann sich eine Öffnung lohnt."

Constitutional protection and the churches' position

Stefan Genth, Chief Executive of the Handelsverband Deutschland (HDE), told Bild: „Einkaufen ist auch Freizeiterlebnis". Sascha Warnken, center manager of the Citti Park Kiel, referred to the need for reliable opening hours for customers, but at the same time emphasised: „Wir brauchen verlässliche Öffnungszeiten für unsere Kunden und müssen ja auch berücksichtigen, dass wir an Sonntagen höhere Personalkosten haben." Sven Schulte from the Industrie- und Handelskammer NRW (IHK NRW) argued with regard to families: „Warum soll eine Familie nicht auch am Sonntag mal in die Innenstadt gehen, einen Kaffee trinken und danach eine neue Hose kaufen? Auch das kann ja Familienzeit sein."

Opponents of comprehensive Sunday openings refer to the constitutional protection of Sunday. The Basic Law for the Federal Republic of Germany designates Sundays as days of „Arbeitsruhe". Pastor Wilko Teifke of the Nordkirche (North Church) underscored the special significance of the free Sunday: „Der freie Sonntag ermöglicht gemeinsames Innehalten, Zeit für Familie, für Gemeinschaft und für den Gottesdienst". It also remains crucial "dass der Charakter des Sonntags gewahrt wird und Ausnahmen Ausnahmen bleiben". Churches and trade unions have long rejected a comprehensive liberalisation of Sunday openings.

Nils Böhlke, trade union secretary in the regional trade division management at Verdi NRW, also rejected the argument that Sunday openings could bring shops back to city centres or curb online retail. People shop online primarily because they can order from the couch, Böhlke said. „Es gibt viele Länder, in denen sonntags geöffnet werden darf. Es ist nicht so, dass der Onlinehandel deswegen weniger verkauft", he said. He also warned: „Die Beschäftigten haben ohnehin schon sehr familienunfreundliche Arbeitszeiten. Wenn dann noch Sonntage hinzukommen, wird der Job noch unattraktiver."

In March of this year, the Higher Administrative Court in Mecklenburg-Vorpommern overturned that state's spa regulation following a lawsuit filed by the ver.di trade union. The ruling makes clear that comprehensive Sunday openings remain legally contested, even in regions with a tourism connection.

The debate over Sunday openings is emblematic of a fundamental conflict: economic interests collide with constitutionally anchored Sunday protection, church traditions, and trade union demands for family-friendly working hours. A definitive political solution is currently not in sight, especially since the federal states issue their own rules for store openings.

With regard to the planned reform of the bakery regulation, it remains to be seen how the Bundesrat (Federal Council) and the federal states will assess its implementation. Should the law enter into force as amended in January 2027, the debate over broader Sunday openings in retail is likely to intensify further.

Meanwhile, Dierk Böckenholt at the Handelsverband Nord pointed to the already changed shopping reality: „Verbraucher kaufen ohnehin sonntags ein", he said, referring to online retail. „Geöffnet wird in der Regel dort, wo es ausreichend Frequenz gibt", he added. The association hopes the reform will harmonise competitive conditions between brick-and-mortar retail and online retail.